Sacramento Housing and Redevelopment Agency (PERB 1939M)

STATE OF CALIFORNIA
DECISION OF THE
PUBLIC EMPLOYMENT RELATIONS BOARD
AFSCME COUNCIL 57, LOCAL 146,
Charging Party,
V.
SACRAMENTO HOUSING &
REDEVELOPMENT AGENCY,
Respondent.
Case No. SA-CE-476-M
PERB Decision No. 	1939-M
January 11, 2008
Appearances: 	Beeson, Tayer & Bodine by Costa Kerestenzis, Attorney, for AFSCME
Council 57, Local 146; VeRonica Busby, Labor Relations Officer, for Sacramento Housing &
Redevelopment Agency.
Before Neuwald, Chair; Shek and McKeag, Members.
DECISION
SHEK, Member: 	This case comes before the Public Employment Relations Board
(PERB or Board) on appeal by AFSCME Council 57, Local 146 (AFSCME) of the partial
dismissal of its unfair practice charge. The unfair practice charge alleged that the Sacramento
Housing & Redevelopment Agency (SHRA) violated sections 3503 and 3505 of the Meyers-
Milias-Brown Act (MMBA)1 by unilaterally assigning new or different duties to bargaining
unit members without meeting and conferring in good faith.
The Board has reviewed the entire record in this case, including but not limited to
AFSCME's unfair practice charge and amended charge, SHRA's position statement and
response, the Board agent's partial warning letter and partial dismissal letter, AF SCME' s
1MMBA is codified at Government Code section 3500, et seq. Unless otherwise indicated,
all statutory references herein are to the Government Code.

appeal of the partial dismissal and SHRA' s response. The Board hereby affirms the partial
dismissal of the unfair practice charge, based on the following discussion.
BACKGROUND
The Unfair Practice Charge filed on May 1, 2007
AFSCME's unfair practice charge alleged the following facts:
1. 	Since on or about November 6, 2006, SHRA has attempted to require the
following classifications to perform work outside their job descriptions:
Maintenance Worker
Maintenance Technician
Maintenance Technician Lead 2
Specifically, SHRA has tried to force the above positions and employees to perform the work
of:
Dispatchers
Maintenance Specialist 	Electricians
Maintenance Specialist 	Carpenters
Maintenance Specialist 	HVAC
Maintenance Specialist - Inspectors
Maintenance Specialist - Locksmith
Maintenance Specialist - Painters
Maintenance Specialist - Plumber3
2 SHRA states and AFSCME acquiesces by a lack of objection that there is no current
classification of Maintenance Technician Lead. 	Effective January 2008, eight current
Maintenance Technician positions will be converted to Lead positions pursuant to an
agreement with AFSCME. 	All references to the "Maintenance Technician Lead" position
hereafter will be subject to this information.
In support of this allegation, AFSCME refers to its attachment #1, consisting of SHRA
job descriptions for Maintenance Worker and Maintenance Technician.
31n support of this allegation, AFSCME refers to its attachment #2, consisting of SHRA
job descriptions for Dispatcher, Maintenance Specialist - Electrician, Maintenance Specialist -
Carpenters Maintenance Specialist - HVAC, Maintenance Specialist - Inspector, Maintenance
Specialist - Locksmith, Maintenance Specialist - Painter, and Maintenance Specialist -
Plumber.
2

2. 	Prior to November 6, 2006, Uniform Physical Condition Standard (UPCS)
inspections were not performed by bargaining unit employees. 	Since November 6, 2006,
SHRA has unilaterally assigned, without meeting and conferring with AFSCME, UPCS
inspections to:
Maintenance Workers
Maintenance Technicians
Maintenance Technician Leads
3. 	Prior to November 6, 2006, dispatching work was performed by the
classification of Dispatcher. 	Since November 6, 2006, dispatching work has been unilaterally
reassigned to:
Maintenance Workers
Maintenance Technicians
Maintenance Technician Leads
4. 	Prior to November 6, 2006, vacancy inspections, cost estimates for tenant
damage and pro-rates work were performed by the AFSCME represented Inspectors. 	Since
November 6, 2006, the vacancy inspections, cost estimates for tenant damage and pro-rates
work have been unilaterally assigned to:
Maintenance Workers
Maintenance Technicians
Maintenance Technician Leads
5. 	Prior to November 6, 2006, complete First Inspection work was done by
"others." Since November 6, 2006, complete First Inspection work has been unilaterally
reassigned to:
Maintenance Worker
Maintenance Technicians
Maintenance Technician Leads
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6. 	On or about December 19, 2006, employee Ken Lee (Lee) reported to AFSCME
that he was required to do HVAC work, drywall replacement, painting and lock changes.
SHRA never met and conferred with AFSCME over these changes.
7. 	On December 19, 2006, employee Dave Bolen (Bolen) reported to AFSCME
that at "River Oaks," he was asked to check water source furnaces and water levels. 	At "Alder
Grove," he was asked to check all wall heaters and central heaters, and perform UCPS
inspections. 	SHRA never met and conferred with AFSCME over these changes.
8. 	On November 9, 2006, Maintenance Technician Jim Roughton (Roughton) was
required to do a unit vacancy inspection, perform plumbing repairs, install water heaters and
do cost estimates. Roughton' s job title prior to a Letter of Understanding signed by both
SHRA and AFSCME, dated October 27, 2006 (the Agreement), was Maintenance Specialist -
Painting.
9. 	On December 19, 2006, Maintenance Technician Ray Garner (Garner) was
required to perform unit vacancy inspections. 	Garner's job title prior to the Agreement was a
Maintenance Specialist - HV AC. 4
10. 	Additionally, ten named employees were required to work outside "the scope of
their job description." The employees were: 	Canote, Roughton, Deam, Hamilton, Larson,
Schermerhorn, Sinclair, Richard Lindelli, Mike Martz, and Ronald Croxen.
AFSCME alleges that SHRA has made a unilateral change in the conditions of
employment without meeting and conferring with AFSCME.
4In support of this allegation, AFSCME refers to its attachment #4, consisting of hand-
written "working out of classification document or beyond the scope of your job description"
statements of Mary Canote (Canote), Keen Deam (Deam), Alex Hamilton (Hamilton),
Richard Larson (Larson), Wayne Schermerhorn (Schermerhorn), Charles Sinclair (Sinclair),
and other unidentified personal notes.
4

SHRA' s Response filed on June 4, 2007
SHRA stated that in mid-2005, the U.S. Department of Housing and Urban
Development (HUD) promulgated new regulation which required public housing authorities to
manage their properties under asset management and project based accounting system rather
than the existing centralized operation. 	In order to comply with the HUD financial reporting
requirements, SHRA was mandated to make organizational changes which involved
decentralization and reassigning of staff, including AFSCME' s represented employees, to
individual SHRA property sites. 	SHRA and AFSCME met and conferred on
August 14 and August 31, 2006; and September 8, 18 and 26, 2006. 	SHRA contends that
AFSCME actively participated in the discussions at each meet and confer session, before
reaching the Agreement.
The pertinent portion of the Agreement provides the following. 	First, effective
November 1, 2006, eight employees (three were classified Maintenance Specialist - painter;
two were classified Maintenance Specialist - HVAC; two were classified Maintenance
Specialist - carpenter; and one was classified Maintenance Specialist - locksmith) have
requested and accepted a voluntary demotion to the Maintenance Technician classification.
All eight employees will receive a "Y-rate" salary at their current salary through December
2007, at which time the salary will revert to the Maintenance Technician classification, Salary
Range F, Step 5, consistent with Section 10.4 of the memorandum of understanding (MOU)
between SHRA and AFSCME. Effective January 2008, all eight employees will begin
receiving five percent (5%) hourly lead pay as specified in Article 9.4 of the MOU,
Leadworker pay. 	Second, effective as soon as practical, one Dispatcher (Karen Boyle) would
accept a voluntary demotion to a Housing Technician classification, and the Dispatcher
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classification is to be eliminated. The incumbent will be placed in a Housing Technician
classification at a Y-rate through December 2007, at which time the salary will then revert to
the Maintenance Technician classification, Salary Range C, Step 5.
SHRA argues strenuously that a thorough discussion of the new duties of each
classification was held and that certainly, an understanding was reached that as a result of the
HUD mandated changes, job duties were moving from specialist to generalist.
The Board Agent's Partial Warning Letter issued on June 8, 2007
In the partial warning letter, the Board agent found that SHRA and AFSCME engaged
in several meet and confer sessions that culminated into the Agreement, and that they agreed to
the reclassification of positions in the Agreement. 	The Board agent further found that the
Agreement "effectively eliminated the Maintenance Specialist classifications of Painter,
HVAC, Carpenter and Locksmith and placed the incumbents from those positions in the
classification of Maintenance Technician at a Y-rate through December 2007." The Board
agent found that AFSCME "did agree to the reclassification of those positions," and therefore,
the first and third allegations "failed to demonstrate that the employer unilaterally redefined
the positions." The Board agent found that the sixth and seventh allegations failed "to provide
enough detail so as to state a violation," since there was a lack of "specific information as to
what classifications Ken Lee and Dave Bolen hold and why the new duties are not 'reasonably
comprehended within the existing duties.' 	[Rio Hondo Community College District (1982)
PERB Decision No. 279.]" The Board agent also found that the eighth and ninth allegations
failed to state any changes in the specific duties Roughton and Garner were then required to
perform as Maintenance Technician, and that the tenth allegation was "so unclear in that it
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does not describe what positions the incumbents hold." The partial warning letter dismissed all
allegations except the second and fourth allegations.
AFSCME's Amended Charge filed on June 25, 2007
AFSCME asserted that "we never agreed to modify existing job descriptions, ... and
that ... the work of all the Maintenance Specialty Positions (Dispatcher, Carpenter, HV AC,
Electrical, Inspector, Locksmith, Painter, and Plumber) were not contained in the Maintenance
Worker and Maintenance Technician Positions." 	It stated that Maintenance Workers and
Maintenance Technicians perform general repairs, while specialists do "journey level work,"
or "the more complex" work. 	AFSCME referred to a "Maintenance Specialist, Inspector"
position that performed a level of inspection which was "markedly different" than the general
inspections performed by a "Maintenance Technician." AFSCME further argued that it had
agreed in the Agreement only to demote and promote certain employees, but not to change job
descriptions for the Maintenance Classifications. 	AFSCME also added a new allegation that it
did not agree to contract out any service, but did not provide any specific facts regarding the
type of service being contracted out, to whom it was being contracted out or when and where
the contracting out occurred.
The Board Agent's Partial Dismissal Letter issued on July 12, 2007
The Board agent stated in the partial dismissal letter that there were insufficient facts to
address the issue of contracting out, which was raised in AFSCME' s amended charge. 	The
Board agent dismissed all allegations except the second, fourth and fifth allegations, for the
reasons stated in the partial warning letter.
AFSCME's Appeal of Partial Dismissal filed on August 14, 2007
7

In its appeal, AFSCME argues that the Board agent: 	(1) erroneously interpreted the
Agreement; (2) did not properly review and analyze the exhibits and additional information
provided by AFSCME with its unfair practice charge; and (3) held AFSCME to an improper
standard by requiring it to prove its case at this stage, rather than simply to establish a prima
facie case.
SHRA's Response to AFSCME's Appeal filed on November
13,
2007
SHRA concurs with the Board agent's partial warning and partial dismissal letters. In
addition, SHRA raises the new argument that the 2006-2007 labor agreement (labor
agreement) between the parties allows layoffs for "lack
of
funds, or abolishment
of
position."
DISCUSSION
The key dispute in this case is whether AFSCME has established a prima facie case for
unilateral change.
Unilateral changes are considered "per se" violations
if
certain criteria are met. 	Those
criteria are: 	(1) the employer implemented a change in policy concerning a matter within the
scope
of
representation, and (2) the change was implemented before the employer notified the
exclusive representative and gave it an opportunity to request negotiations. 	(Vernon Fire
Fighters
v.
City
of
Vernon (1980) 107 Cal.App.3d 802 [165 Cal.Rptr. 908]; Walnut Valley
Unified School District (1981) PERB Decision No. 160; San Joaquin County Employees
Association
v.
City of Stockton (1984) 161 Cal.App.3d 813 [207 Cal.Rptr. 876]; Grant Joint
Union High School District (1982) PERB Decision No. 196.)5
When interpreting the MMBA, it is appropriate to take guidance from cases
interpreting the National Labor Relations Act and California labor relations statutes with
parallel provisions. 	(Fire Fighters Union v. City of Vallejo (1974) 12 Cal.3d 608
[116 Cal.Rptr. 507].)
8

AFSCME, as the charging party, has the burden of alleging, in a "clear and concise
statement of facts," when the acts ofreprisal took place. 	In Sacramento City Unified School
District (2001) PERB Decision No. 1461 (Sacramento City Unified School District), the Board
adopted a warning letter that cited the following rule:
PERB Regulation 32615(a)(5) requires, inter alia, that an unfair
practice charge include a 'clear and concise statement of the facts
and conduct alleged to constitute an unfair practice.' Thus, the
charging party's burden includes alleging the 'who, what, when,
where and how' of an unfair practice. (State of California
(Department of Food and Agriculture) (1994) PERB Decision
No. 1071-S, citing United Teachers-Los Angeles (Ragsdale)
(1992) PERB Decision No. 944.) Mere legal conclusions are not
sufficient to state a prima facie case. (Ibid.; Charter Oak Unified
School District (1991) PERB Decision No. 873.) 	[Sacramento
City Unified School District, warning letter, at p. 8.]
The Board agent correctly stated that in order to prevail on a theory of transfer of job
responsibilities, the charging party must demonstrate actual changes in the employee's job
duties. 	If the changes are reasonably comprehended within the existing job duties, an
assignment of such duties, even if never performed before, is not a violation. 	(Rio Hondo
Community College District (1982) PERB Decision No. 279 (Rio Hondo).)
However, we disagree with the Board agent's characterization of the Agreement as an
agreement to reclassify the Maintenance Specialist positions.
The Agreement authorizes the promotion/demotion of numerous employees. 	In
particular, it provides that the three employees classified as Maintenance Specialist 	painter
(Guy Boerner, Lester Douglas and Roughton); the two employees classified as Maintenance
Specialist 	HV AC (Deam and Garner); the two employees classified as Maintenance
Specialist - carpenter (Greg Spitz and John Vinson); and the one employee classified as
Maintenance Specialist - locksmith (Jeff Thomason), have all voluntarily accepted a demotion
9

to the Maintenance Technician classification. The Agreement, however, does not substantiate
the Board agent's finding that the parties agreed to "the reclassification of those positions."
Rather, what the Agreement provides is that all eight employees will be voluntarily demoted to
the classification of the Maintenance Technician, and as such, will perform the duties of the
Maintenance Technician.
Notwithstanding our interpretation of the Agreement, we concur with the Board agent's
finding that AFSCME has failed to establish a prima facie case for unilateral change based on
the facts stated in the first, third, sixth through tenth allegations, and the discussion below.
The First Allegation
AFSCME alleged that employees within the classifications of Maintenance Worker,
Maintenance Technician, and Maintenance Technician Lead were required to perform work
outside their job descriptions, specifically, the work of Maintenance Specialist in the positions
of Electrician, Carpenter, HVAC, Inspector, Locksmith, Painter, and Plumber. 	There is
insufficient evidence in the record to support AFSCME' s allegation.
First, AFSCME did not allege who were required by SHRA to perform work outside
their job descriptions. If AFSCME were referring to the eight employees6 who voluntarily
agreed to accept a demotion to the position of Maintenance Technician, then its allegation must
fail because of the terms of the Agreement. If AFSCME were referring to the six employees7
who submitted hand-written "working out of classification document or beyond the scope of
6Guy Boerner, Lester Douglas and Roughton, Deam, Garner; Greg Spitz, John Vinson
and Jeff Thomason.
7As stated in footnote 4, these six employees were: 	Canote, Deam, Hamilton, Larson,
Schermerhorn and Sinclair.
10

your job description" statements, its allegation cannot stand either because it is unclear as to
the positions held by these six employees.
Second, according to the job description AFSCME provided, the primary purpose of the
Maintenance Technician is to "work at an advance level, with limited supervision, maintaining
and repairing Agency residential and commercial building and maintaining grounds and
landscaped areas of Agency facilities." 	Further, this classification acts as the key person in
work assignments carried out but several workers, presumably the lower but related
classification of Maintenance Worker. 	"Duties [of the Maintenance Technician] also may
include: ... Inspect work sites, evaluate work and check for compliance with established
standards and work orders ... " (Emphasis added.) The duties of the Maintenance Worker,
according to the SHRA job description, is to "assist Maintenance Specialist or work
independently, as assigned to: 	complete general repairs, such as plumbing, electrical, roofing,
appliances and HVAC ... repair and install doors, furniture, counter tops, cabinets, shelving,
floor tile and other carpentry items ... Hang, tape, patch, texture, paint and stain drywall and
other interior surfaces ... Repair and install locks and hardware." (Emphasis added.) In
summary, inspection, plumbing, HVAC, electrical, carpentry, painting and locksmith work are
reasonably comprehended within the existing job duties of the classifications of Maintenance
Worker and Maintenance Technician. (Rio Hondo.)
AFSCME next argued that the classifications of Maintenance Worker and Maintenance
Technician perform only generalized work, and would not perform the specialized function
performed by Maintenance Specialists. We find the analysis in Rio Hondo to be instructive.
In that case, the Board found that the community college district did not unlawfully assign
11

teaching duties to Cooperative Work Experience (CWE) instructor/coordinators (CWE
instructors.) The Board reasoned:
Although it is unrefuted that CWE instructors had not previously
been given teaching assignments, we find that the assignment of
CWE instructors to teach courses in 'career development' was
reasonably comprehended within the scope of their existing job
duties .... 	The CWE instructor job description is, on its face,
silent as to possible teaching assignments, ... [however] we find
that, when the job description is viewed in light of the nature of
the CWE program and the type of courses CWE instructors were
assigned to teach, the District's conduct was permissible.
(Rio Hondo, at pp. 17-18.)
(Emphasis added.)
While we accept to be true AFSCME's allegation that Maintenance Worker and
Maintenance Technician would not perform the same specialized work performed by
Maintenance Specialists in the past, we nevertheless find that inspection, plumbing, HVAC,
electrical, carpentry, painting and locksmith work have long been intimately related to and a
regular part of the building maintenance function of SHRA. 8 It may be fairly ascertained from
the record that the assignment of formerly specialized maintenance duties to employees within
the Maintenance Worker and Maintenance Technician classifications was "closely enough
related to their existing duties as not to be an unlawful policy change." (Rio Hondo, at p. 18.)
Thus, AFSCME has failed to establish a prima facie case for unilateral change by
alleging that SHRA attempted to require the classifications of Maintenance Worker,
Maintenance Technician, and Maintenance Technician Lead to perform work outside their job
descriptions.
8The SHRAjob descriptions for the Maintenance Technician and Maintenance Worker
classifications were created in October 1999, and revised in January 2000, over six years
before the events giving rising to this charge occurred.
12

The Third Allegation
AFSCME alleged that dispatching work, formerly performed by the classification
of
Dispatcher, was unilaterally reassigned to the classifications
of
Maintenance Worker,
Maintenance Technician, and Maintenance Technician Lead. 	According to the job description
AFSCME provided, the primary purpose
of
the Dispatcher is to "dispatch daily work orders to
appropriate staff and to place order for contracted services
of
non-routine items as needed."
Some essential areas ofresponsibility include: 	"Process work orders for routine, on-call,
emergency and overtime work ... Post maintenance charges to individual unit accounts ...
Prepare computer status reports."
In comparison, the job description for the Maintenance Technician classification states
that the relevant duties include: "Prioritize work orders and create schedules ... Provide back-
up workforce when needed ... Provide training and direction for staff ... Use computer to input
job data, code and track invoices, write correspondence and prepare reports ... Maintain
records and logs
of
work." The relevant duties
of
the Maintenance Worker, as stated in the job
description, include: "Maintain records and logs
of
work."
Processing work orders, using computer to input data and track invoices are reasonably
comprehended within the existing job duties of the classifications
of
Maintenance Worker and
Maintenance Technician. 	(Rio Hondo.) Thus, AFSCME has failed to establish a prima facie
case for unilateral change by alleging that SHRA attempted to require the classifications
of
Maintenance Worker, Maintenance Technician, and Maintenance Technician Lead to perform
work outside their job descriptions, namely that of the Dispatcher. 	(Rio Hondo.)
The Sixth through Tenth Allegations
AFSCME alleged that SHRA required Lee and Bolen to perform certain maintenance
functions without first meeting and conferring with AFSCME "over these changes." We
13

concur with the Board agent's finding that AFSCME has failed to provide sufficient
information as to Lee and Bolen' s existing classifications and why the new duties are not
reasonably comprehended within the existing duties.
AFSCME further alleged that Maintenance Technician, Roughton, whose former
classifications was Maintenance Specialist - painting, was required to perform a unit vacancy
inspection, plumbing repairs, water heater installation, and job estimates; and Maintenance
Technician Garner, whose former classifications was Maintenance Specialist - HV AC, was
required to perform unit vacancy inspection. 	As discussed earlier under "The First Allegation"
section, Roughton and Garner's allegedly new duties of conducting unit vacancy inspections,
performing plumbing repairs, installing water heaters and doing cost estimates are all
reasonably comprehended within the existing job duties of the Maintenance Technician.
We concur with the Board agent's conclusion that the tenth allegation lacks specifics on
the incumbents' positions, duties, and newly assigned duties that are not reasonably
comprehended within their existing duties. We also agree with the Board agent's position that
without any specific facts or information, the issue of contracting out cannot be further
addressed.
Based on the above analysis, AFSCME' s first and third, sixth through tenth allegations,
as written, have failed to satisfy its burden of stating sufficient facts to establish that SHRA
engaged in a unilateral change. 	On this basis, we concur with the Board agent's finding that
absent a clear and concise statement of the facts and conduct alleged to constitute an unfair
practice, AFSCME' s charge cannot be sustained.
14

ORDER
Consistent with this decision, the first, third, sixth through tenth allegations in the
unfair practice charge in Case No. SA-CE-476-M are hereby DISMISSED WITHOUT LEAVE
TO AMEND.
Chair Neuwald and Member McKeag joined in this Decision.
15